AN OVERVIEW OF HOUSING EXCLUSION IN EUROPE 2015
The Foundation Abbé Pierre - Feantsa # chap. 2
HOMELESSNESS IN THE EUROPEAN UNION: A serious situation but not a hopeless one 52 53 # Chap. 2 # Chap. 2 HOMELESSNESS IN THE E.U.: A serious HOMELESSNESS IN THE E.U.: A serious situation but not a hopeless one situation but not a hopeless one
Table 1 Ethos light
Operational category Living situation Generic definition he statistical index on housing exclusion in Europe only deals with difficulties experienced by people with housing. It does not Living rough or in a public give any perspective on thesituation of people who are homeless. space, without shelter that 1 People living rough 1 Public or outdoors space Extreme poverty, particularly homelessness, is a major challenge could be defined as a dwelling unit to the credibility of the European project. Particularly at a time
when Member States are struggling to provide a unified response People without a usual place People in emergency of residence who frequently to various social crises, manifesting in an increase in situations Emergency accommodation 2 accommodation 2 move from one type of of social distress. In this context Europeans have an increasingly accommodation to another negative perception of how inequality and poverty issues are being dealt with1. TNo EU Member State and furthermore no developed country, has managed to 3 Homeless hostel eradicate homelessness. A European effort could help understand this major shared challenge and contribute to improving political responses. 4 Temporary accommodation People in accommodation for When the period of stay is less Homelessness is closely linked to Europe’s biggest problems such as how migrants 3 the homeless than one year Transitional supported are received , equal rights, free movement and the exclusion of young people. In this 5 accommodation sense, homelessness is increasingly becoming a European problem. To aid understanding of these situations, the ETHOS typology2 categorises housing 6 Women’s shelter difficulties from homelessness to housing quality problems to security of occupation. Stay longer than needed due The lines between homelessness and extreme housing difficulties are often blurred. Medical institutions 7 to lack of housing Although ETHOS is a widely used reference for understanding and measuring 4 People living in institutions 1 homelessness and housing exclusion, there is still no generally accepted definition in No housing available prior European Commission Penal institutions 8 to release (2014) Special Europe. There remains fairly widespread confusion between the situation of roofless Eurobarometer 418 - Social Climate Report, available at: http:// people living rough and the broader situation of those without a home, who may be ec.europa.eu/public_ 9 Mobile homes opinion/archives/ebs/ for example living in a hostel. ebs_418_en.pdf When the accommodation is People living in non- In the following analysis, the abridged ‘Ethos light’ classification will be used as used due to lack of housing 2 conventional housing due to Non-conventional building http://www.feantsa.org/ 5 10 and is not the person’s usual a basic reference definition for homelessness. This is a standardised definition lack of housing spip.php?article120 place of residence for statistical purposes, as suggested in a 2007 European Commission study on 3 Temporary structure Edgar, W., Harrison, M., 3 11 Watson, P. and Busch- understanding homelessness . It is nonetheless essential to note that the Member Geertsema, V. (2007), The Measurement State definitions of homelessness are, in general, narrower (or, more unusually, Homeless person living in of Homelessness at When accommodation is used EU level, European broader). temporary conventional Conventional housing but not Commission, available due to lack of housing and is housing with family or the person’s usual place of at: http://ec.europa.eu/ 6 12 not the person’s usual place of employment_social/ friends (due to lack of residence residence social_inclusion/ housing) docs/2007/study_ homelessness_en.pdf Source: Edgar et al (2007)
54 AN OVERVIEW OF HOUSING EXCLUSION IN EUROPE 2015 | Feantsa - The Foundation Abbé Pierre The Foundation Abbé Pierre - Feantsa | AN OVERVIEW OF HOUSING EXCLUSION IN EUROPE 2015 55 # Chap. 2 # Chap. 2 HOMELESSNESS IN THE E.U.: A serious HOMELESSNESS IN THE E.U.: A serious situation but not a hopeless one situation but not a hopeless one
Extent of homelessness in the EU: Member States’ statistics the number of homeless people in the different on homelessness paint Member States (see Table 2.1). In as far as pos- an unclear picture 1. A general rise sible, these statistics are based on official figures provided at national level. Where there is a lack In the absence of a universally accepted defini- homelessness in Europe gives an overview that, of such figures, alternatives are suggested. Also tion, the academic and institutional literature on while patchy, still enables us to address the issue. With the lack of data available on homelessness provided is contextual information on definition, at EU level, Member State statistics provide the methodology and source. The trends refer only Table 2 only available data for analysing trends and the to the statistics mentioned. For the purpose of Recent reports on the extent homelessness in the EU gravity of the situation. coherence, we have not referred to trends based We have compiled the most recent statistics on on information from additional sources. The European Observatory on Homelessness publishes regular statistical updates on the homelessness situation in Europe. The most recent is from 20144 and focuses on 15 EU Member States (the Czech Republic, Denmark, Finland, France, Germany, Hungary, Ireland, Italy, the Netherlands, Poland, Portugal, Slovenia, Spain, Sweden and the United Kingdom). It showed that the number of homeless people increased in recent years in all countries except Finland, where the figure fell. Table 3 The OECD recently published assessments of homelessness and the public policies that target it in Available figures (non-comparable) on the number OECD countries5. of homeless people in EU Member States The European Commission estimates that there could be up to 410,000 people sleeping rough or in Member Reported Notes on definition and emergency or temporary accommodation on any given nightin the European Union. This implies that Period Source Trends State Statistics methodology almost 4.1 million people every year face homelessness for periods of varying length6. Increase of The Social Protection Committee has published several reports in recent years demonstrating a rise in This only covers people 16,000 Ministry for 40%: from 11,399 the number of homeless people due to the crisis7. Austria Year 2013 registered as homeless excluding people Social Affairs people in 2008 those living rough. In 2011, the census included its first attempt to count the number of homeless people using a common to 16,000 in 2013 standard. This attempt was overall deemed unnsuccesful because it did not accurately reflect the No national statistics. There are number of homeless people. It did nonetheless enable some countries to improve the quality of data for the other regions but they 8 their data . are not comparable. Survey taken on one night. Broad definition FEANTSA publishes regular reports based on contributions from organisations working with homeless Increase of including people sleeping rough, Belgium 1 night in 33%: from 1,724 people. Its 2012 monitoring report focused on the extent and nature of homelessness in EU Member 2,063 people in emergency accommodation, La Strada (Brussels12) 2014 people in 2009 States; national expert contributions from 21 countries showed that the number of homeless people had in shelters for homeless people13, to 2,063 in 2014 increased over the preceding one to five years in at least 15 of the 21 countries9. FEANTSA also publishes some non-conventional places14 ‘country fiches’ every year that provide an overview of homelessness in the different Member States10. and hospitals. Excluding accommodation with family or The 2015 report from Housing Europe on the state of housing in the EU highlighted the increase in the friends. number of homeless people in the EU11. Places taken in shelters for 12 3,486 places Data is available for homeless people. Excluding other regions but taken in Agency 1 night in people sleeping rough, people cannot be compiled Bulgaria homeless for Social — 2015 staying with family or with 4 7 9 assistance Assistance Busch-Geertsema, V, Benjaminsen, L, Filipovič Social Protection Committee (2013), Social FEANTSA (2012) On the Way Home? FEANTSA 13 friends, and other people not in services Hrast, M and Pleace, N (2014) Extent and Profile Europe: Current challenges and the way Monitoring Report on Homelessness and Includes homeless accommodation. of Homelessness in European Member States: A forward, Annual Report of the Social Protection Homeless Policies in Europe, FEANTSA, available shelters and Statistical Update, EOH Comparative Studies on Committee 2012, European Commission, at: http://feantsa.org/spip.php?article854&lang=en women’s shelters. Homelessness, Number 4 – 2014, FEANTSA/EOH, available at: http://ec.europa.eu/social/main. Excludes certain This covers homeless people available at: http://www.feantsaresearch.org/spip. jsp?catId=738&langId=en&pubId=7405 types of long-term 10 accommodation such 1 night in listed as staying in social Ministry of php?article343&lang=en See http://feantsa.org/spip. Croatia 462 people — as Housing First, php?article853&lang=en 2013 protection centres on 31 Social Policy 8 supported housing Baptista, I., Benjaminsen, L., Pleace, N. and Busch- December 5 and transitional OECD (2015), Integrating Social Services for Geertsema, V. (2012) Counting Homeless 11 accommodation Vulnerable Groups: Bridging Sectors for Better People in the 2011 Housing and Population Pittini, A., Ghekière, L., Dijol, J., Kiss, I. (2015) The Cyprus — — — — — Service Delivery, OECD Publishing, Paris, http:// Census, EOH Comparative Studies on State of Housing in the EU 2015: A Housing Europe dx.doi.org/10.1787/9789264233775-en Homelessness, Number 2 – 2012, FEANTSA/EOH, Review, Housing Europe, available at: http://www. 14 Non-official available at: http://www.feantsaresearch.org/spip. housingeurope.eu/resource-468/the-state-of- Result of the census covering Czech shelters, ‘negotiated php?article189&lang=en housing-in-the-eu-2015 Czech 11,496 1 night in 6 occupation’, religious only users of homeless hostels on Statistical — SWD(2013) 42 final Republic people 2011 communities the night of the census. Office
56 AN OVERVIEW OF HOUSING EXCLUSION IN EUROPE 2015 | Feantsa - The Foundation Abbé Pierre The Foundation Abbé Pierre - Feantsa | AN OVERVIEW OF HOUSING EXCLUSION IN EUROPE 2015 57 # Chap. 2 # Chap. 2 HOMELESSNESS IN THE E.U.: A serious HOMELESSNESS IN THE E.U.: A serious situation but not a hopeless one situation but not a hopeless one
15 Broad definition. Includes some SFI - The Increase of Single people Survey. Identifies people who National 1 week in people staying with families Danish national 16%: from 4,998 47,648 1 month in have used a soup kitchen or night Institute of Denmark 5,820 people Italy — 2013 or friends, those coming from centre for social people in 2009 people 2011 shelter during the month of the Statistics institutions, etc. research to 5,820 in 2013 survey. (ISTAT) No official data. Survey. The definition is ‘does not have their Latvia — — — — — Estonia own dwelling or rented home, Tallinn Social 1,371 people 2012 — (Tallinn) does not have the possibility of Work Centre Only covers people in shelters One night in Statistics permanent accommodation or Lithuania 4,957 people and crisis centres for women and — 2012 Lithuania sleeps somewhere temporarily’. children Housing Broad definition. Includes people Decrease of Survey of the number of Ministry 7,500 single Finance and Increase of 1 night in staying with families or friends, 8%: from 8,153 people using the 20 homeless of Family, Finland people & 417 Development 1 night in 20% from 1,336 2013 those coming from institutions, people in 2009 Luxembourg 1,677 people accommodation services for Integration families Centre of 2015 persons in 2012 etc. to 7,500 in 201315 adults in the Grande Région de and the Grande Finland (ARA) to 1,677 in 2015,. Luxembourg. Région France’s National Institute of Statistics and Economic Studies Malta — — — — — (INSEE) carries out a study every ten years, mainly in towns Annual estimate from the of over 20,000 inhabitants. It national population registry, from supplements this with another administrative data on social study carried out in small National Increase of welfare and from information Decrease: from towns. Users of meal and Institute of about 50% The 25,000 1 night in Central Bureau 141,500 One night in systems on alcohol and drugs. 27,300 in2012 to France accommodation services are Statistics and between 2001 Netherlands People 2013 of Statistics people 2012 Broad definition including those 25,000 in 2013 asked where they slept the night Economic and 2012, to who occasionally stay with before. Geographical coverage Studies (INSEE) 141,500 people friends or family. The data are not is not uniform and this count totally complete. excludes people who did not use meal or accommodation services. Includes people sleeping rough The estimate does however and in homeless shelters. Ministry of include people in reception Participation is voluntary. Count 31,933 1 night in Labour and centres. Poland does not have total coverage. The — people 2013 Social Policy methodology used to enumerate Annual prevelance estimation (MPiPS) from Germany’s federation of rough sleepers is contested by services for homeless people Increase of 21%: NGOs. (BAG W). On the basis of from 234,000 284,000 Germany 2012 extrapolations made from a 1992 BAGW people in 2009 Results of the census from people 1 night in counting the number of people Statistics study. Includes all the ETHOS to 284,000 in Portugal 696 people — light categories and the ‘hidden’ 2012 (+21%) 2011 sleeping rough and from a survey Portugal homeless. There are no official mainly covering night shelters. data at national level. Research Result of a single study carried The Ministry Institute for 14,000- Estimate of the number of people out by the Ministry of Health. of Health’s Quality of Life Romania 15,000 2006 sleeping rough and using night — Excluding migrants and National and National Greece 7,720 people 2009 — people shelters. Travellers. Mainly covering Centre of Social Institute of people who sleep rough. No Solidarity Statistics regular collection of official data. (NCSS) Annual survey by homeless Slovakia 2,000 to Depaul — — — services. Covers people in (Bratislava) 3,000 People International Survey of 3 10,549 1 night in shelters and those sleeping Hungary February by — people 2014 rough. Participation is voluntary. 17 Census. People in buildings not BMSZKI Includes some Statistical Not all services and people are designed for habitation and those people living in 1 night in Office of the covered. housing in the Slovenia 3,829 people who use the Centres for Social — private rental sector 2011 Republic of Work or NGOs as an address17. Night count of people in homeless whose landlords do Slovenia 1 night in Central not allow them to use Non-exhaustive. Ireland 3,808 people accommodation or identified as — 2011 Statistics Office the address officially sleeping rough.
58 AN OVERVIEW OF HOUSING EXCLUSION IN EUROPE 2015 | Feantsa - The Foundation Abbé Pierre The Foundation Abbé Pierre - Feantsa | AN OVERVIEW OF HOUSING EXCLUSION IN EUROPE 2015 59 # Chap. 2 # Chap. 2 HOMELESSNESS IN THE E.U.: A serious HOMELESSNESS IN THE E.U.: A serious situation but not a hopeless one situation but not a hopeless one
18 Reported statistics from Member States give a temporarily staying with friends, acquaintances Increase in the number of people in long- Survey of users of free food and confusing image of homelessness in Europe. or relatives because they have nowhere else term housing on the emergency accommodation Increase of 5%: The data are not comparable due to disparities to go. The total number of homeless people in ‘secondary housing services in towns of more than National from 21,901 market’ is not included 22,939 From 13/02 Spain 20,000 inhabitants. Does not Institute of people in 2005 in definitions, methodologies, level, quality and Finland was 8,316 of which 75% were living with here, and this figure has people to 25/03 2012 increased by almost cover all forms of homelessness Statistics (INE) to 22,932 in 600%. In part due to reliability. friends or relatives, according to respondents nor does it provide complete 2012 (+5%) better coverage with this to the survey carried out in 93% of Finland’s survey, but also because geographical cover. this sector has grown Most of the figures conveyed include people municipalities. The number of homeless people in size. 19 sleeping in emergency accommodation. Several in Portugal would be higher than in Finland N.B. Each of the The number others also cover other types of accommodation if the same definitions were used and if the decentralised of people slee- for homeless people. Several countries exclude geographical coverage and coverage of services governments of the ping rough, UK collects data on homelessness but in shelters, people who are sleeping rough (for example were comparable. they are not strictly in accom- comparable and Austria, Bulgaria, Croatia, the Czech Republic, modation cannot therefore be Lithuania and Slovenia). A higher proportion of The usefulness of comparisons is equally ham- gathered together. centres and See: www.scotland. in institutions countries exclude people who are staying with pered by the significant divergences with regard gov.uk/homelessness for data on Scotland. who have family or friends and/or who live in institu- to coverage, quality and nature of the data. For See: http://gov.wales/ Data collected from a wide nowhere to go statistics-and-research/ tions and have nowhere to go when they leave. some countries, no data was available that we homelessness/?lang=en range of services that are in has increased for Welsh data. contact with homeless people. The National by 29%: from could identify (for example Cyprus, Latvia, and 34,000 1 week in Scandinavian countries and the Netherlands Sweden Broad definition. Includes Board of Health 6,600 in 2005 People 2011 stand out from the others because they collect Malta). Others do not have official data, meaning 20 people staying with families or and Welfare to 8,500 in 1996 Housing Act, the Homelessness Act 2002, friends, those about to come out 2011 data from the widest range of living situations reliance on other sources (Germany, Belgium, and the Homelessness of institutions, etc. The number (Priority Need for in their official national statistics. France is the Estonia, Hungary, Slovakia and Romania). In of people Accommodation) only country where people who live in recep- Germany, the estimate is based on a 1992 study. (England) Order 2002. staying with friends tion centres for asylum seekers are included In ten countries, the statistics provide a basis for 21 or family See annex 1 in the estimated total. In England where appli- describing trends (Austria, Belgium, Denmark, increased by 55%: from cations and granting of assistance with regard Finland, France, Germany, the Netherlands, 4,400 in 2005 to the homelessness legislation are counted, Spain, Sweden, and the United Kingdom). In to 6,800 in households that do not apply are not counted. As several cases, the data only cover a particular 201118. single-person households are unlikely to receive region or the capital. The majority of countries assistance under the law, it is probable that there collect point in time data. A smaller number The first figure represents the are many ‘hidden homeless’ people who are not of countries use administrative data to record For ‘statuto- quarterly total of households to ry home- being counted in this group. flow data like Austria, the Netherlands and the whom there is a ‘statutory duty’ lessness’ , 22 of housing assistance on the United Kingdom . Some data are very old and/ there was part of local authorities. This Some countries that seem to have a high level or are collected very occasionally. Denmark, an increase depends on eligibility, being of 4%: from of homelessness include a much wider range Sweden, Finland and the Netherlands collect 13,520 involuntarily homeless and 52,290 in the households From 1/01 to having ‘priority needs’20. Only of living conditions in their definition of home- robust data, on a regular basis, at national level. tax year 2013- are 31/03 2015 includes households that have Department for United 2014 to 54,430 lessness than just sleeping rough or using emer- Ireland and France make good use of census ‘registered 1 night turned to the local authorities Communities Kingdom for 2014-2015 gency accommodation. The countries at the top methodologies but these only occur once every homeless’ between for assistance. and Local (England19) The number 2,744 people 30/10 and The second figure represents Government of the list often have data collection methodolo- ten years. of people slee- sleeping 30/11 2014 the quarterly total of counts ping rough gies that are more robust and more exhaustive. It rough and estimates of the number increased of people sleeping rough on a seems for example that the number of homeless Overall, these statistics indicate that home- by 14%: from given night during the period 22 people in Portugal is negligible compared to lessness exists everywhere in the European 2,414 in Ireland and Denmark surveyed, as carried out by autumn 2013 also make good use Finland. However, the Portuguese statistics are Union. There is no reason to think that the the local authorities. The local of administrative to 2,744 in authorities decide to proceed by data but not for the limited to people sleeping rough and in emer- situation is any different in the three countries autumn 2014 total estimate cited counting or by estimating. in the statistics gency accommodation. Finland’s 2014 statis- that do not have data i.e. Cyprus, Latvia and conveyed and used here. tics, on the other hand, include people that are Malta. Source : Various21
60 AN OVERVIEW OF HOUSING EXCLUSION IN EUROPE 2015 | Feantsa - The Foundation Abbé Pierre The Foundation Abbé Pierre - Feantsa | AN OVERVIEW OF HOUSING EXCLUSION IN EUROPE 2015 61 # Chap. 2 # Chap. 2 HOMELESSNESS IN THE E.U.: A serious HOMELESSNESS IN THE E.U.: A serious situation but not a hopeless one situation but not a hopeless one
23 Among the ten countries that have data on The Netherlands and Finland are the only two Table 4 FEANTSA (2012) op. ‘Best estimates’ levels recorded with regard to homelessness cit, p. 21 trends, eight indicate an increase in the number Member States to report a recent reduction in
24 of homeless people in recent years. Among pos- the number of homeless people. In Finland, the Best Member State Statistics Period Source Crisis (2015) sible explanations for this increase are structural reduction is credited to a programme that aims estimates English statutory homelessness problems in housing and labour markets; the to end long-term homelessness. It seems that statistics, available Austria 16,000 people Year 2013 Ministry for Social Affairs Higher at: http://www. functioning of and changes to social protection this strategy has helped Finland to address Belgium crisis.org.uk/ 1,944 people 1 night in 2010 La Strada Higher pages/statutory- systems and support services (mental health, the problem of ‘chronic’ homelessness among (Brussels only) homelessness- 26 statistics. asylum, youth, etc.); the impact of the crisis and peoplewith multiple and complex problems . In 3,486 places taken up in Agency for Social html#england_ Bulgaria 1 night in 2015 Higher entitle the austerity measures that resulted; and the the Netherlands, the recent reduction probably services Assistance 25 weakness of policies aimed at preventing and results from the end of an increase in home- Croatia 462 people 1 night in 2013 Ministry of Social Policy Higher Fitzpatrick, S., combating homelessness. lessness reported due to the recession. Between Pawson, H., Bramley, Cyprus — — — Higher G., Wilcox S., Watts, B. 2010 and 2012, the total number of homeless (2015) Homelessness Czech Republic 11,496 people 1 night in 2011 Czech Statistical Office Higher Monitor, England The statistics do not really enable us to determine people had increased from 23,000 to 27,000. On 2015, Crisis, London, SFI - The Danish national available at: http:// whether the countries hardest hit by the crisis are 1 January 2013, it had fallen again to 25,000. Denmark 5,820 people 1 week in 2013 Similar www.crisis.org. centre for social research uk/data/files/ experiencing the largest increase in the number During the previous decade, the Netherlands publications/ Estonia Homelessness_ of homeless people. Among the countries sub- had managed to reduce the number of homeless 1,371 people 2012 Tallinn Social Work Centre Higher Monitor_ (Tallinn only) England_2015_final_ jected to a Memorandum of Understanding, only people through a strategic plan which initially Housing Finance and web.pdf 7,500 single people Spain publishes data. However, this data focuses focused on four main cities, before being rolled Finland 1 night in 2013 Development Centre of Similar and 417 families 26 on a relatively narrow section of the population out across all municipalities. Finland (ARA) See the complete description of the and undoubtedly, is not an accurate reflection of strategy further on in National Institute of this chapter. the problem. According to NGO reports in Spain, Statistics concerning homelessness do not France 141,500 people 2012 Statistics and Economic Similar, but... Greece and Portugal, there has been a 25 to 30% always accurately reflect the reality. Their limits, Studies (INSEE) increase in demand for homeless services in the as mentioned above, mean that the number of Germany 284,000 people 2012 BAGW Similar, but... aftermath of the crisis23. Some countries that homeless people is often underestimated. We The Ministry of Health’s had managed to reduce the number of homeless therefore present our ‘best estimates’ regarding Greece 7,720 people 2009 National Centre of Social Higher Solidarity (NCSS) people over the last decade have seen that suc- the level of probable precision of the statistics Survey of 3 February cess slip since the crisis. In the United Kingdom recorded. These ‘best estimates’ are based on Hungary 10,549 people 1 night in 2014 Higher by BMSZKI (England), the number of households to which the quality and coverage of the data collection Ireland 3,808 people 1 night in 2011 Central Statistics Office Similar, but... local authorities owed a statutory duty of hou- systems, and the extent of disagreement on the National Institute of sing assistance had been continuously falling official figures coming from NGOs working with Italy 47,648 people 1 month in 2011 Similar, but... Statistics (ISTAT) between 2003/2004 and 2009/2010, dropping from homeless people in the country. They also take 135,420 to 40,020. The number then started to into consideration the general context of social Latvia — — — Higher increase again reaching 54,430 in 2014/201524. protection. In the ‘best estimates’, we indicate if Lithuania 4,957 people 1 night in 2012 Statistics Lithuania Higher It seems likely that welfare reform, particularly the figures are, in reality, likely to be ‘higher’ or Ministry of Family, in the area of housing allowances, but also the ‘similar’ to the reported statistics. We have used Luxembourg 1,677 people 1 night in 2015 Integration and Higher the Grande Région introduction of an overall benefits cap, more use of the term ‘similar, but...’ in cases where the figures sanctions, the reduction of services for homeless are probably close to reality, but where certain Malta — — — Higher people particularly with regard to prevention, clarifications are nonetheless necessary. The Netherlands 25,000 people 1 night in 2013 Central Bureau of Statistics Similar and the introduction of the ‘bedroom tax’ which Ministry of Labour and Poland 31,933 people 1 night in 2013 Similar, but... penalises social housing tenants who have more Social Policy (MPiPS) space than they need, have all contributed to the Portugal 696 people 1 night in 2011 Statistics Portugal Higher 25 changing trend . Research Institute for Quality of Life and Romania 14,000-15,000 people 2006 Higher National Institute of Statistics
62 AN OVERVIEW OF HOUSING EXCLUSION IN EUROPE 2015 | Feantsa - The Foundation Abbé Pierre The Foundation Abbé Pierre - Feantsa | AN OVERVIEW OF HOUSING EXCLUSION IN EUROPE 2015 63 # Chap. 2 # Chap. 2 HOMELESSNESS IN THE E.U.: A serious HOMELESSNESS IN THE E.U.: A serious situation but not a hopeless one situation but not a hopeless one
27 Slovakia N.B. Each of the 2,000 to 3,000 people — Depaul International Higher Range of factors impacting decentralised (Bratislava only) governments of the Statistical Office of the UK collects data on Slovenia 3,829 people 1 night in 2011 Higher the number of homeless people homelessness but Republic of Slovenia they are not strictly 2. comparable and From 13/02 to National Institute of cannot therefore be Spain 22,939 people Similar, but... The above analysis shows how difficult it is, based quality of information on the homelessness gathered together. 25/03 2012 Statistics (INE) on the existing statistics, to accurately compare the issue. We have chosen to compare the number The National Board of 28 Sweden 34,000 people 1 week in 2012 Similar See annex 1 Health and Welfare number of homeless people in light of wider trends of homeless people across Denmark, Finland 29 From 1/01 to in poverty and social protection. Furthermore a and Sweden. Report from 13,520 households are 31/03 2015 Department for United Kingdom wide range of factors affect the number of home- The statistics above reveal that Sweden reports FEANTSA members ‘registered homeless’ 1 night between Communities and Local Similar, but... (England only27) less people. There is not necessarily a systematic a greater number of homeless people than its 2,744 people sleeping rough 30/10 and Government 30/11 2014 correlation between the level of poverty, the level Nordic neighbours which are also EU Member
Source : Various28 of social protection and the number of homeless States. Given their relatively similar contexts people. This is due in part to the differences in data of social protection, this might seem surprising. quality. However, there are also a wide range of In at least 17 Member States (Portugal, timation of the number of people living rough additional factors to consider - the housing market, The explanation for this lies partly in the wide Romania, Slovakia, Slovenia, Latvia, Lithuania, and to the omission of several categories of the extent and nature of social housing policies, use of a ‘secondary housing market’30, introduced Luxembourg, Malta, Greece, Hungary, Estonia, supported housing. According to the NGOs, the the employment situation, migration and health as an interim solution for homeless people while Austria, Belgium, Bulgaria, Croatia, Cyprus and exact number would be closer to 40,000, rather contexts, and the existence of effective policies they are preparing to live independently in the Czech Republic), the available statistics than the 32,000 reported29. In Spain, the survey to prevent and resolve homelessness. Another conventional housing. Tenants in this market underestimate the number of homeless people. methodology only targets municipalities of a issue is the extent of private solidarity, in particular are counted in the statistics for homeless people This reflects the fact that the definitions are certain size and only reaches people who use family structures. Changes in any of these areas in Sweden but not in Denmark or in Finland. narrow, that the geographical coverage is limited meal services and accommodation services. can have an impact on the number of homeless This difference in definition is explained by the (often due tolocal level of competencies), and The data is similarly limited in Italy. In Ireland, people. The exclusion of some groups of people (e.g. fact that the secondary housing market plays that the data is hampered by quality issues and/ the statistics do not count people living in ins- young people or migrants) from certain benefits, , a very significant role in the state’s response to or the lack of a national data-collection strategy. titutions, in non-conventional housing or with property bubbles, the closure of care institutions homelessness in Sweden, unlike in the two other third parties due to lack of housing. In the United (e.g. psychiatric hospitals) without organising countries. Tenants on the secondary housing With regard to the other 11 Member States Kingdom, and in particular in England, the data community-based alternatives, migratory flows market often face many obstacles when they (Denmark, Finland, France, Germany, Ireland, tells us more about how the legislation on home- without adequate political responses, etc. all have want to move on to conventional housing and Italy, the Netherlands, Poland, Spain, Sweden lessnessworks than about their overall situation. 30 Not to be confused profound implications on the size and composition thus find themselves trapped in the secondary and the United Kingdom), the statistics are pro- Only four Member States have official statistics with secondary residences. The of the homeless population. What is more, well- housing market. There has been, as a result of bably more in line with reality. In seven of these that allow a fairly complete picture to be establi- secondary housing market is housing conceived policies that are well funded and have this, a very significant increase in the secondary countries, there are still significant limits in shed of the number of homeless people and the stock where the necessary political will behind them to deal housing market in recent years. Municipalities allocation and terms of definitions and/or coverage of the data. trends in homelessness (Denmark, Finland, the management is more with homelessness can bring significant results often introduce conditions into the leases on this socially oriented For Germany, the statistics do not come from Netherlands, and Sweden). than on the free even in difficult contexts. market, for example engagement with social sup- market. It could also official sources but from an estimate established be called a ‘second- port, which can complicate the tenants’ position. chance market’. by the voluntary sector and based on an already outdated study. In France, Ireland, Italy, Poland, 31 Insight into the specific Benjaminsen, L. & Even taking into consideration the diffe- Spain and the United Kingdom, measuring the Dyb, E. The Effective- contexts of three Nordic ness of Homeless rences in definition, it seems that the level number of homeless people with reference to Policies – Variations countries: Denmark, Finland of homelessness is higher in Sweden than in among the Scandi- a broader definition and/or providing greater navian Countries, and Sweden the neighbouring Nordic countries31. There are European Journal data coverage would give a more complete pic- of Homelessness, several possible explanations for this difference. Volume 2 , December ture of the situation and would probably show a 2008, p 49 – 49, avai- A major factor could be the recent liberalisation lable at: http://www. higher number of homeless people. In Poland, feantsaresearch. The relevant comparisons can only be esta- of Sweden’s public housing and its adoption org/spip.php?ar- the survey methodology leads to an underes- ticle32&lang=en blished between countries that have the same of a more commercial approach. This libera-
64 AN OVERVIEW OF HOUSING EXCLUSION IN EUROPE 2015 | Feantsa - The Foundation Abbé Pierre The Foundation Abbé Pierre - Feantsa | AN OVERVIEW OF HOUSING EXCLUSION IN EUROPE 2015 65 # Chap. 2 # Chap. 2 HOMELESSNESS IN THE E.U.: A serious HOMELESSNESS IN THE E.U.: A serious situation but not a hopeless one situation but not a hopeless one
lisation resulted in largely putting an end to factors. It does seem credible however that politi- The profile of homeless municipal waiting lists and the referral system, cal engagement along with funding has enabled giving municipal social housing companies state homeless policies to achieve greater effect people in Europe more control over the allocation of housing. in Denmark and Finland than in Sweden, which 3. This reform probably works to the detriment of has not had a coordinated strategy since 2009 This chapter is based on the latest compa- ments with friends, family or acquaintances . the most vulnerable households, particularly (even if the seemingly worse results from Sweden rative studies carried out by the European Recent research carried out in Ireland shows homeless people. also need to be counterbalanced by the different Observatory on Homelessness in coordination that homeless women tend to avoid homeless In recent years, both Denmark and Finland have categorisations and a broader definition of the with FEANTSA32. We focus on three demographic accommodation services38. Generally speaking, implemented ambitious strategies for impro- notion of homelessness which further reinforces dimensions: gender, age and the proportion of homeless women perhaps use other services ving the situation of homeless people (see the the impression of an increase in homelessness). migrants amongst homeless people. more frequently than men. In France, there is analysis presented in the second part of this a higher representation of homeless women chapter). These strategies have led to improved Even when comparing contexts that have as well as households with children staying in policy coordination and large-scale promotion of broadly similar social protection systems, fac- Gender hotels. Some 63% of the homeless people staying Housing First, developed to help people who have tors such as the existence of a robust strategy 32 Busch-Geertsema, in hotels are women. A very small proportion of complex problems to quickly move into their for combatting homelessness and the social V. et al. (2014) op. cit and FEANTSA (2012) people sleeping rough (5%) and people staying in own home and be supported therein. Caution is housing system, seem to play a significant role op. cit. According to the statistics, the majority of home- night shelters (9%) are women. Conversely, 52% nonetheless necessary when judging the impact in terms of the number of homeless people. 33 Czech Republic, less people in most countries are male. The of people staying in housing provided by asso- of such strategies compared to wider structural Denmark, 39 Finland, France, European Observatory on Homelessness showed ciations are women . In terms of prevention, in Germany, Hungary, Ireland, Italy, the that in most of the 15 Member States studied in several countries, the social protection systems Netherlands, Poland, 33 have specific provisions for households with Portugal, Slovenia, 2014, 75 to 85% of homeless people are male . Spain, Sweden and children which serve in part to protect women the United Kingdom 34 Women are nonetheless present within the exposed to the risk of homelessness. The situa- FEANTSA (2012) homeless population and in increasing num- tion of homeless women is closely linked to the op. cit. bers34. The proportion of women is relatively situation of homeless families. The number of 35 35 families within thehomeless population varies Busch-Geertsema, high in France (38%) and in Sweden (36%) . In V. et al. (2014) op. cit. these countries, women staying in shelters for from one country to the next, depending on how 36 victims of domestic violence are counted as part well-targeted the social welfare and solidarity INSEE (2012) op. cit. of the homeless population. The definition of services are. 37 ‘homeless person’ also includes people in longer Busch-Geertsema, V. et al. (2014) op. cit. term housing without a permanent contract. The 38 proportion of women in these two situations is Young people: More at risk Mayock, P. and of homelessness Sheridan, S. (2012) relatively high. The patterns in terms of gender Women’s ‘Journeys’ to Homelessness: distribution are, in part, a function of the defini- Key Findings from a Biographical Study tion of the term ‘homeless people’. of Homeless Women The available statistics indicate that homeless in Ireland, Women and Homelessness In France, the proportion of women is higher people in Europe are mostly young people and in Ireland, Research Paper 1 (Dublin: among young homeless people (48% among 18-29 middle-aged people. In several countries, the School of Social Work and Social year olds and 31% among those over 50)36. In other 30 to 49 year age bracket is, in general, the Policy & Children’s Research Centre, countries like Germany and Ireland, this overlap highest represented group and makes up almost Trinity College Dublin), between young and female homeless people is half of all homeless people. The 18 to 29 year 39 also observed37. age bracket makes up 20 to 30% of the total INSEE (2012) op. cit. The situation of homeless women is often number of homeless people in the majority of 40 described as relatively invisible. Women are countries40. Busch-Geertsema, V. et al. (2014) op. cit. more likely to resort to informal arrange- 66 AN OVERVIEW OF HOUSING EXCLUSION IN EUROPE 2015 | Feantsa - The Foundation Abbé Pierre The Foundation Abbé Pierre - Feantsa | AN OVERVIEW OF HOUSING EXCLUSION IN EUROPE 2015 67 # Chap. 2 # Chap. 2 HOMELESSNESS IN THE E.U.: A serious HOMELESSNESS IN THE E.U.: A serious situation but not a hopeless one situation but not a hopeless one
41 Generally, the highest proportion of young Given the high level of youth unemployment Migrants can be exposed to the risk of finding homeless migrants can be observed (from 532 Iacovou, M (2011) 50 Leaving Home: people within the homeless population is found due to the crisis, the growth in the number of themselves homeless for different reasons. to 1,986 people) . Independence, togetherness and in northern and western Europe. Taking account homeless young people over the last few years The administrative status given to them by the income in Europe, Population Division of the specific challenges and life situations of is becoming a major concern in several coun- host country is the determining factor in their EU citizens from other Member States are Expert Paper No. 2011/10, United young people, this probably reflects that coun- tries. Young people’s rights to social benefits access to work, to social welfare allowances increasingly being observed in the homeless Nations Department of Economic and tries with a narrower definition of homelessness ares becoming increasingly limited which is and in some countries, to basic services such as population of the EU15. In London, almost 35% of Social Affairs, do not adequately capture the magnitude of a significant factor in this worrying trend. In shelters. Migrants and people with immigrant the people sleeping rough come from central and available at: http:// www.un.org/en/ the housing difficulties encountered by young addition, leaving institutional youth care repre- backgrounds can find themselves facing discri- eastern European countries (the ‘A10’ countries development/ desa/population/ people. Besides, young adults tend to leave the sents a major risk factor for homelessness. The mination on the housing market. Furthermore, - Bulgaria, the Czech Republic, Estonia, Hungary, publications/pdf/ expert/2011-10_ family home earlier in northern and western transition to adulthood can be associated with institutional factors such as employment-re- Latvia, Lithuania, Poland, Romania, Slovakia and Iacovou_Expert- paper.pdf Europe than in southern and eastern Europe. domestic violence, family breakdown, drugs, lated restrictions for migrants can expose them Slovenia)51. In certain areas of Paris, up to 40% of 42 The reasons for this phenomenon are complex: mental health problems, issues related to sexua- to the risk of becoming homeless. users of homeless services come from eastern Busch-Geertsema, 52 V. et al. (2014) op. cit. the age for setting up home, for getting married, lity, etc. The most striking example of an increase Europe . In the absence of a clear EU framework further education, the price of rent and the rates in the number of homeless young people comes Countries on the borders of Europe, transit on the rights of EU citizens to access basic ser- 43 41 Busch-Geertsema, of unemployment are different . Here are some from Denmark, which has seen an 80% increase countries, and countries with a larger number vices, Member States have developed divergent V. et al. (2014) op. cit. examples of this general trend among homeless in homeless people aged 18 to 24 years between of migrants in the wider population, have a high approaches to the issue. Some countries, like 44 young people42: 2009 and 2011. During this period, the number has level of migrants among the homeless popula- Denmark, refuse people without residence Busch-Geertsema, V. et al. (2014) op. cit. • In France and in the Netherlands, about one risen from 633 to 1,00244. While Member States are tion. In Italy, the majority of people recorded in a rights access to emergency accommodation53. 45 quarter of homeless people are aged between indeed acting to deal with issues of youth unem- 2011 survey on the situation of homeless people An increasing number of Member States have FEANTSA (2015) Does 47 the EU Youth Gua- 18 and 29 years. In Denmark, this age bracket ployment and exclusion, particularly within the were foreign nationals (60%) . In Greece, despite developed programmes to help repatriate people rantee address young homeless people’s makes up almost one third of homeless people. framework of the ‘Youth Guarantee’, they must the absence of official statistics, it is clear that to their country of origin. The question remains needs?, available at: http://www.feantsa. • In Hungary and Poland in 2011, only 6% of the also guarantee the establishment of measures to many migrants are homeless. In Spain, the most however as to the extent that people who find org/spip.php?ar- ticle705&lang=en homeless population were aged between 20 prevent and manage the situation of homeless 47 recent survey on homelessness showed that themselves in such a vulnerable position as slee- 45 Busch-Geertsema, V. and 29 years. young people . et al. (2014) op. cit. 46% of the 12,100 homeless respondents were ping rough can exercise free choice with regard 46 48 FEANTSA (2012) • In Spain, where one might expect to see a high foreign nationals . Among them, more than to these programmes. Besides, the situation that op. cit. 48 number of homeless young people given the Busch-Geertsema, V. half (56%) were African. France has a relatively these people find themselves in on return to their Migration et al. (2014) op. cit. context of high youth unemployment due to 49 high proportion of foreign nationals within its country of origin is highly unpredictable. the crisis, only 16% of the homeless population INSEE (2012) op. cit. homeless population. This figure rose from 38% is aged between 18 and 29 years. 50 in 2001 to 52% in 201249. As the issue of common In certain rural contexts, seasonal farm wor- • Italy is an interesting exception: 32% of the In the majority of Member States, migrants are Busch-Geertsema, V. EU asylum policy has become central in the kers live in situations that constitutehome- et al. (2014) op. cit. general population is aged between 18 and 34 context of massive influxes, Member States are lessness. For example, there are encampments overrepresented in the homeless population. 51 years. This age bracket only represents 10% of This seems to be a growing trend, particularly in CHAIN database debating the possibility of a quota system. In the and non-conventional dwellings without proper Italy’s homeless population however. Within https://files. meantime, hundreds of thousands of people are sanitary facilities in Spain and Italy’s agricultu- the EU-15 countries. In 2012, FEANTSA members datapress.com/ the foreign population, this age bracket repre- london/dataset/ facing living conditions that, without a doubt, ral regions. in 14 out of 21 Member States under review chain-reports/ sents 47%. The influence of migrants, who tend CHAIN%20 constitute homelessness and which highlight reported an increase in the number of migrants Greater%20 to be young, is very significant in the general 46 London%20 the manifest lack of adequate reception capacity. who were homeless . bulletin%202014- age profile of the homeless population in Italy. 15.pdf The term ‘migrant’ does not always carry the 52 Even in countries where a large majority of Busch-Geertsema, V. Only a few countries, like Poland (52%) and same meaning in different contexts. Migrants et al. (2014) op. cit. the homeless population is made up of natio- Hungary (55%)43, are seeing an overrepresenta- can be asylum seekers, refugees, beneficiaries 53 nals, an overrepresentation of migrants can tion of people over 50 among their homeless of subsidiary protection status, people whose N.B. The situation be observed. In Finland, for example, migrants is changing; in population. This possibly reflects older people’s residence permit has expired, people waiting to Copenhagen, there represented 26% of the homeless population is currently a pilot insufficient income. be sent back to their country of origin, and EU project to provide in 2013 but just 5% of the general population. accommodation for citizens exercising their right to free movement. illegal immigrants. Since 2009, a 273% increase in the number of
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17 Member States have not Key elements of an integrated Government policies announced an integrated strategy to combat to tackle homelessness strategy to combat homelessness 4. homelessness
54 Strategies put in place Republic, Luxembourg and Wales. http://feantsa.org/ in Europe FEANTSA identified ten elements for an inte- spip.php?ar- • Strategies that have become obsolete due to The political approach to this challenge varies grated strategy to combat homelessness. Figure ticle328&lang=fr not being adequately implemented or funded. widely from one country to the next: 4.2 summarises these, giving a few short exa- 56 In Sweden, where there has not been a natio- N.B. Each of the • Countries like Austria, Belgium, and Germany mples from different Member States58. United Kingdom’s In the EU, a growing number of Member States nal strategy since 2009; in Portugal where the governments where, due to regional competencies on (England, Scotland, have announced the establishment of inte- strategy was never properly funded or imple- Northern Ireland, combating homelessness, we see the strate- Ten elements from the FEANTSA toolkit for Wales) has their own grated strategies to combat homelessnessle. mented by the government. strategy and they are gic approaches varying greatly in terms of developing an integrated strategy to combat becoming ever more In 2010, a European consensus conference on • Strategies that in the past produced results divergent. intensity from one region to the next. On the homelessness homelessness concluded that putting an end but that have since been downgraded. England whole, these countries have multiple policies to homelessness is possible and we must gra- implemented a relatively exhaustive strategy and services in place to combat homelessness. 1. Evidence-based approach dually work towards this54, expressing for the including a ringfenced budget to support muni- Some regions in particular, such as Flanders Understanding the problem of housing exclu- first time a consensus on this aim i.e. it is not cipalities address homelessness, the system (ongoing) and North Rhine-Westphalia, have sion is the essential starting point. In practice, about managing these problems but about sol- of statutory assistance for homeless people, developed relatively effective strategies. this consists of having a good data-collection ving them. To achieve this , the consensus confe- and coordination with social landlords. The • Countries that are moving towards a more strategy; using research and analysis to direct rence recommended all Member States develop joint work of these authorities meant progress strategic approach to combating home- policy decisions; regularly revising policies on integrated strategies at local and national level. was made between 1990 and 2009. The number lessness, despite the existing obstacles. Italy, the basis of evidence about emerging needs and While the ‘frontline’ in combating homelessness of homeless people started to rise again with for example, is largely decentralised with about the effectiveness of the measures taken. is at local level, national strategies can provide the financial crisis and since the budget for regard to social policy, but it has just published Example: Denmark systematically uses evi- a general framework to support advancement. homeless services was cut, housing assistance policy guidelines for the regions with the aim dence to develop and evaluate its policy on a The European Commission called on all Member and welfare benefits were capped and the legis- of combating homelessness. Italy is in this way continuous basis. This is done through detailed States to develop such strategies. lation-based security net for homeless people trying to maximise the opportunities offered by follow-up and an evaluation of the strategies in was weakened. EU structural funds. order to continuously direct the policymaking Eleven countries announced the creation of • Strategies for which it is hard to gauge the • In the majority of new Member States, the process. national strategies to combat homelessness in state of progress. France made combating situation of homeless people has only recently recent years - the Czech Republic, Denmark, homelessness a ‘national priority’ for the period been seen as a policy issue. In these countries, 2. Comprehensive approach Finland, France, Ireland, Luxembourg, the 2008-2012, presenting a range of objectives and an expansion of services (to varying degrees) A comprehensive approach includes a good Netherlands, Portugal, Spain, Sweden and the actions. Among these objectives was the imple- was observed but, to date, they have not been balance between the emergency responses, United Kingdom. mentation of a full evaluation of the supply and very focused on setting up strategies that aim to resettlement and reintegration of homeless How this is put into action very much depends demand for shelters and housing in all départe- progressively reduce the number of homeless people along with prevention of homelessness. on the context: ments, a reduction in the number of hotel nights people. In many countries, prevention, resettlement and • Strategies that seem to have had a significant by 10,000 in three years and the provision of • In Greece, the crisis gave a new impetus to reintegration are underdeveloped compared to impact both during the period of the strategy 13,000 alternatives, the construction of 150,000 combating homelessness, but it is impossible emergency responses. As a consequence, the and after, in Denmark, Ireland, Finland, the social housing units, with a section of them to predict, given the current context, how that strategy must aim to find a balance in its approach Netherlands and Scotland56. The Netherlands, earmarked as ‘very social’ housing. At this point, will translate into a concrete strategy. so that its reach is more comprehensive. Finland and Scotland have all seen a reduction the programme has not been clearly followed up • Some countries do not have any strategy Example: In its strategy, Ireland has an approach in at least one form of homelessness which can, on or evaluated, and the funding fell far short of 58 and have very limited measures for comba- that is ‘housing-led’. This means it is deliberately at least in part, be attributed to these strategies. producing a supply of social housing accessible FEANTSA toolkits on homelessness ting homelessness: Cyprus, Croatia, Malta, focused on housing. The emphasis is on quickly • Strategies that it is too early to judge because to people on very low incomes, in spite of this strategies, available at: http://feantsa. Slovakia. providing secure housing with, if necessary, support they are still in their initial stages, for example being the official key point of ‘Housing First’. org/spip.php?ar- ticle630&lang=en in order to guarantee a sustainable rental property. in Spain (in the finalisation phase), the Czech
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3. Multi-dimensional approach tial recourse to the département-level mediation meant that local authorities were only obliged approach with individualised step-by-step plans, A multi-dimensional approach involves inte- commission and then, failing that, proceedings to provide a home for households that met the and individual case management. Some 10,000 grating the housing, health, employment and in the Administrative Court. . Although effective specific criteria for vulnerability. By amending its homeless people were identified and, based on education angles. This also assumes that the implementation of the law remains difficult, it is legislation, Scotland enlarged the ambition of its their needs, an individual response was sought for different services work together and that there without question an unprecedented move. policy to combat homelessness and, in so doing, each of them. This response brings with it income, is cross-sector cooperation in the provision of created a right to housing for all households that accommodation, an individual care plan and, as services. Interdepartmental cooperation is ano- 5. Participatory approach find themselves unintentionally homeless. far as possible, a realistic form of employment. ther important aspect of the multi-dimensional This means total involvement of the stakehol- approach. ders concerned in the strategic development of 7. Sustainable approach 9. Pragmatic approach Example: The implementation of a new strategy policies. It includes homeless people, the service A sustainable approach can be ensured through A pragmatic approach consists of setting realis- in the Czech Republic was monitored by an providers who work with them, public authorities adequate funding, political commitment at all tic and achievable objectives based on a com- interdepartmental working group on preventing and others. All stakeholders concerned must be levels (national, regional and local) and public prehensive understanding of the nature and and combating homelessness. This working involved in policy development, evaluation and support. extent of the situation of homeless people, their group is made up of representatives from the implementation. This is to ensure development Example: The substantial investment made by needs, changes in the housing and employment departments involved as well as members of of the appropriate structures. municipalities, associations and the State is a market and other areas. It is necessary, in order an expert group. It is too early to judge the ope- Example: Denmark has a legal basis for the par- fundamental part of the success of Finland’s to create a credible basis for progress, as well as rational success of the Czech approach but a ticipation of homeless people in decisions that strategy to combat long-term homelessness (see to establish a clear and realistic schedule with large number of the countries with an advanced affect their lives. The law on social services case-study later in this chapter). Another critical medium- and long-term objectives. strategy have developed a multi-dimensional stipulates that local authorities must guarantee factor was the extended, long-term cooperation Example: Finland, Denmark, Ireland, the approach with oversight mechanisms to ensure that all users of shelters (known as Section 110 between national and local level. Letters of intent Netherlands and Scotland stand out as countries its functioning. accommodation) can exercise influence on the were signed between the municipalities and that have set specific, measurable objectives as organisation and services. This led to the esta- the central government in order to implement part of their strategy to combat homelessness on 4. Rights-based approach blishment of users’ committees within shelters. the strategy. They contained detailed agree- the basis of an in-depth evaluation of the context. A rights-based approach consists of promoting These committees are also organised at regional ments regarding construction projects, land use, access to decent, stable housing as an indispen- level and since 2001, a national users’ committee investments, financing for housing and support 10. Bottom-up approach sable pre-condition to exercising most of the has been in place (SAND). SAND plays an active services etc. Political support at the highest A bottom-up approach consists of recognising other fundamental rights. In practice, this means role in the development of policies. level has been continuous despite changes in the importance of the local level within the using housing rights as a basis for the strategy, government. This strategy was based on consen- framework of effectively combating home- focusing on the enforceable right to housing and 6. Statutory approach sus by well-known experts regarding the policy lessness. This involves guaranteeing that local recognising the interdependence of the right to A statutory approach is a strategy to combat direction to take. authorities play a central role in the development housing and other rights such as the right to live homelessness underpinned by legislation. The and implementation of the strategies and that in dignity and the right to health. existence of a legal framework at local/regional 8. Needs-based approach services are developed as close as possible to Example: the DALO law (law no. 2007-290 of 5 level brings coherence and accountability. The The starting point for these strategies must be their end-users. In several countries, we are March 2007) in France enabled the introduction regulatory objectives also enable support for effec- the needs of individual homeless people rather currently seeing a dangerous trend whereby of an enforceable right to housing. People who tive monitoring and evaluation of policy progress. than those of institutions. This involves regu- the competencies for homelessness are being are homeless, inadequately housed, or who have Example: Scotland’s basis for its strategy to combat lar evaluation of the needs and social support decentralised without a sufficient transfer waited more than three years for social housing homelessness is the 2001 (Scottish) law on housing mechanisms, using individualised integration of resources. This is not really a bottom-up (six years in Paris) can demand the right to be and the 2003 (Scottish) law on homelessness. Since plans. A needs-based approach involves regular approach but rather reveals the failure of the rehoused by the State. The law provides the right the end of 2012, all households that are unintentio- revision of the policies and structures in accor- State in playing its role as facilitator. to housing to people who are not managing to nally homeless have the right to settled accom- dance with changing needs. Example: Local authorities play a central role in procure housing or keep housing on their own. modation provided by the local authority. This Example: phase one of the Dutch strategy was strategies to improve the conditions of homeless The State is bound by an obligation as to results has put an end to the long-standing distinction focused on the four largest cities in the period people in many countries, including Denmark, and not only as to means. There is a procedure for that was made between households with ‘priority from 2008 to 2013. It was based on a detailed needs Finland, the Netherlands and the United the effective allocation of housing, involving ini- needs’ and others. The criteria for priority needs analysis and a commitment to a user-centred Kingdom.
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59 The risk of ‘window dressings’ accordance with the DALO law. Another exa- II - are an interesting case study in integrated Results Hermans, K., The During these programmes, 2,500 housing units Dutch Strategy mple is the problematic implementation of the strategies. These programmes were the subject to Combat 61 were built and 350 extra social workers were Homelessness: strategy to address homelessness at local level of an in-depth evaluation (Culhane et al 2015 ), From Ambition to employed to help homeless people. The number Window Dressing? Do these national strategies, which are growing in the Netherlands. Within the context of aus- the main elements of which are summarised here. European Journal of of long-term homeless people has fallen by 1,200 Homelessness in number across Europe, demonstrate a genuine terity, there is concern about ‘the growing gap desire to progressively improve the conditions between the discourse on homelessness and Overview since 2008. It is also estimated that preven- 60 tion has helped 200 more people per year avoid FEANTSA v. The for homeless people? There is a risk that such the implemented local policies that limit home- Finnish programme to reduce the number of Netherlands 59 ending up sleeping rough. (collective complaint strategies are little more than ‘window dressing’ less people’s access to services’ . In concrete long-term homeless people 2008-2011 (Paavo I) 86/2013) and CEC v. The Netherlands or ‘smoke and mirrors’. terms, the problem lies in using criteria based and to end long-term homelessness 2011-2015 (collective complaint Some noteworthy points from the evaluation 90/2013) ‘Paper strategies’ are ones with good intentions on having residency and a ‘local connection’ (Paavo II). of this policy but that are not adequately underpinned by evi- to refuse access to a shelter. This issue was dence, resources, political commitment, legisla- dealt with by the European Committee of Social Scope 60 The convergence of objectives tion, a legal basis, complete understanding of the Rights in two recent decisions . The Committee Focus on the ten largest centres of urban growth problem or other necessary elements to ensure believed that access to emergency accommoda- with Helsinki being the biggest priority. Housing • The property market: the insufficient supply their success. A surprising number of strategies tion should be provided to all, regardless of the first was the central concept that underpinned of affordable housing for rent has a bearing on recently published by EU Member States do not person’s residency status and without giving the whole strategy. all policies combating homelessness. A pro- even specify in concrete terms the resources consideration to other limiting criteria related to gramme aiming to convert homeless shelters that will be allocated to ensure implementation . local connection, age, etc. The Committee stated, Objectives into proper housing; Conversely, some strategies have been a real dri- furthermore, that the community must provide The objective of the 2008-2011 phase was to • The prevention of evictions, with the help of ving force for positive change. The ten elements legal residents with either long-term accommo- reduce by half the number of long-term homeless housing-related advice and assistance and help detailed above represent a good starting point for dation suitable for their situation or housing of people and to develop more effective prevention to find alternative housing if evicted; evaluating strategies. an appropriate standard. These examples show measures with regard to homelessness. There • Housing First and the related support services. Another important element is the continuity of both that it is necessary to follow up closely on was a quantitative objective to provide 1,250 62 Housing-related advice and support services the strategies. Strategies that disappear from the the implementation of homeless policies and housing units , supported accommodation units agenda during or after the period of time they that human rights legislation can play a role in and places in care centres for homeless people. A central point of the homelessness prevention cover have little chance of bringing significant this regard. The objective of the 2011-2015 phase was to end policy. As an example, in 2012-2013 in Helsinki, transformative change. The risk in judging the homelessness through the provision of 1,250 16,000 households were advised on housing mat- quality of strategies is that they will have evolved The commitments expressed within the extra apartments and flexible support services. ters and 280 evictions were cancelled due to this and have become more or less ambitious during framework of the integrated strategies may be support. It is estimated that between 2001 and the period of their implementation. undermined by repressive or even criminalising Responsibilities 2008, these services helped reduce evictions in measures. Even in cases where governments The Ministry of the Environment coordinated Helsinki by 32%. The implementation details are critical and can develop integrated strategies to combat home- the programme in close collaboration with The support services also represent an impor- undermine what seemed to be strong commit- lessness, these policies can be undermined by the Ministry of Social Affairs and Health, the tant cornerstone for better social integration. ment to the rights of homeless people. France’s local, regional or even national policies that Ministry of Justice, the Housing Finance and These services, which are provided to people problems in effectively implementing the DALO criminalise and penalise homeless people. 61 Development Centre of Finland (ARA) and the with housing, enable links to be made with Culhane, D., Granfelt, other social policies but also provide users with law are an example of this. There were almost R., Knutagard, M., Finnish Slot Machine Association (RAY) which Pleace, N (2015). indispensable support (psychiatric, health, etc.). 60,000 households recognised as ‘priority’ wai- The Finnish. part-financed the programme. Implementation Homelessness They enable housing to be secured for a longer ting for housing in 2014. According to a recent Finland: Case study of Strategy. An was carried out through signed letters of intent an integrated strategy International Review, period and studies, comparing it with other coun- judgement by the European Court of Human available at: https:// with the municipalities. to reduce homelessness helda.helsinki.fi/ tries (United States, Sweden, and the United Rights, France is in violation of Article 6, para- handle/10138/153258 graph 1 (right to a fair trial) of the European Resources Kingdom), show that support that decreases in 62 intensity is an appropriate method. Convention on Human Rights because it did Helsinki is a At least EUR 300 million for the entire pro- community of not implement a decision for three and a half Finland’s recent programmes aiming to end 602,000 inhabitants gramme coming from the central government, in an urban area of years, requiring that housing be allocated in long-term homelessness - Paavo I and Paavo 1,345,000 inhabitants. municipalities and RAY.
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Comprehensiveness The continuity of a results-focused policy also users of Housing First services with staff on site. stressed the importance of communicating and It is important to put the most recent programmes seems to be an important element; Finland’s natio- This was a source of controversy because one of sharing the Finnish plans along with both positive in context within the Paavo I and Paavo II strate- nal homelessness strategy was established in the the key principles of Housing First was the use results and problems encountered. One of the gies. Finland saw an increase in the number of 1980s, coordinating housing, health and social of dispersed accommodation. It is nonetheless results of the continuous review process is that the homeless people in the 1980s and implemented policies within the framework of decentralising important to stress that Finland also used a lot characteristics of Finland’s homeless population a series of policy measures, in particular increa- implementation of this national objective. The of ordinary apartments, within communities, are changing and the country is starting to adapt sing the number of affordable social housing strategy was supported by a significant budget, but and mobile support that was less intense. The to this. For example, a greater number of young units with the aim of improving the situation. also indicators to prove the social effectiveness of grouped living solutions have proved to be well homeless people are being seen and there has In 2008, when Paavo I entered into force, Finland the spending. This policy was very effective: the suited to certain needs. been a , shift among long-term homeless people, had already reduced the rate of homelessness to number of homeless people sleeping in shelters, The programme was carefully evaluated and from alcoholism to multiple drug addictions. a relatively minor social problem, i.e. the number institutions, outside or in hotels decreased from monitored during and after its implementation. of homeless people was among the lowest in 10,000 in 1985 to 2,000 in 2012. The number of long-term homeless people fell, Sustainability Europe. Unquestionably, homelessness resulting both in absolute and in relative terms. There Finland is committed, on an ongoing basis, to from a structural lack of housing, mainly linked Coordination were 25% fewer long-term homeless people in the prevention and reduction of homelessness. to economic factors and the provision of affor- Political support was carefully and systemati- 2013 than in 2008 and the proportion of long- This country is making sustained political effort dable housing, had largely been resolved. While cally worked on; the central government coo- term homeless people fell from 45% to 36%. The and devoting significant resources to its national the population of homeless people was 18,000 perated with the municipalities, requiring them objective of reducing the number of long-term strategy. It is widely accepted that systematic at the end of the 1980s, this figure had fallen to to sign letters of intent committing them to the homeless people by 50% by 2011 was not reached effort aimed at preventing and reducing home- 8,000 in 2008 and the Paavo programmes were strategy. The coordination guaranteed the coo- nor was the subsequent objective of completely lessness will be necessary in order to keep the established to further reduce this figure. peration of the voluntary sector, social landlords eradicating long-term homelessness by 2015. numbers low. An essential point is that the first phase, Paavo I, and Foundation Y (Finland’s main social housing However, the figures were reduced and have Homelessness has unquestionably been reduced was focused on the situation of long-term home- provider). remained very low. to the point that it can now be considered a minor lessness, often associated with co-morbidity of In 2014, Finland asked a panel of international social problem. The number of homeless people serious mental health problems and alcohol/ Evidence based experts, who worked alongside a Finnish expert, is currently so low that although it has not been drug problems. This focus was chosen because The Finns learned the lessons from their own to examine the effectiveness of their national eradicated, only a very small minority of Finnish it was found that the existing services were not experience regarding effective design of services strategy. The group’s conclusions were that people are likely to find themselves homeless leading to a reduction in the number of long-term and decided to remodel their existing services although some problems had not yet been resolved and, if they do find themselves at risk of it, it is homeless people, which remained at 45% of the for long-term homeless people to move towards and they had not managed to end homelessness, likely that the situation will either be managed total homeless population. Achieving a total what they called a ‘Housing First’ approach. the number of homeless people was very low in or it will not be long term. Maintaining this posi- reduction in the number of homeless people Finland independently arrived at a Housing comparison to other EU Member States and other tive situation nonetheless requires continuous therefor necessitated the establishment of an First-type model, but once they realised that OECD countries. The combination of preventive work, and ongoing efforts need to be made with effective response to the more chronic needs. there was a close link to what was happening in services, increasing access to the affordable and particular attention being given to emerging In the second phase, Paavo II, emphasis was other countries, they actively set about learning adequate housing a, as well as specific strategies needs such as those of homeless families and still put on reducing the number of long-term more about the North American and European to meet the needs of people with complex needs, homeless migrants. homeless people, but new objectives were intro- experiences. particularly the long-term homeless and others Finland offers an excellent example of a truly duced which focused on the residual forms of Although Finland took some of the lessons like former prisoners facing a lack of housing, coordinated, exhaustive and especially effective homelessness. Prevention services were already learned from examples abroad, they were adap- was deemed to be very effective. The long-term response to the situation of homeless people. quite widespread in the largest cities, but Paavo ted to its specific national context. Finland prag- commitment to end homelessness in Finland is Of course, this strategy must be viewed in the II concentrated on further developing these matically decided to extensively use existing still in place with a third phase to the national context of a rich country with a robust social services. There was also greater coordination buildings to provide permanent apartments to strategy being planned. protection system and a relatively low level of between social housing providers, and Finland homeless people. In particular in the first phase The Finnish strategy was characterised by a wil- immigration. Although caution is required and tried to improve access to social housing for all of the programme, large buildings (notably some lingness to set, examine and externally evaluate the fall in the number of homeless people should homeless people and to increase the number of of the existing emergency accommodation) were strategic objectives. Finland was also broadly not be solely attributed to this strategy, it does housing units to meet their needs. transformed into apartments occupied solely by inspired by other countries’ good practice and seem to have had a transformative effect.
76 AN OVERVIEW OF HOUSING EXCLUSION IN EUROPE 2015 | Feantsa - The Foundation Abbé Pierre The Foundation Abbé Pierre - Feantsa | AN OVERVIEW OF HOUSING EXCLUSION IN EUROPE 2015 77 # Chap. 2 # Chap. 2 HOMELESSNESS IN THE E.U.: A serious HOMELESSNESS IN THE E.U.: A serious situation but not a hopeless one situation but not a hopeless one
ISTAT (2013) Homelessness. [online], available at: http://www.istat.it/en/files/2013/06/ Italy Homeless.pdf?title=The+homeless+-+10+Jun+2013+-+Full+text.pdf [24.11.2014] cited in annex 1 Busch-Geertsema, V. et al. (2014) op. cit. 63 FEANTSA (2014) Lithuania’s Country Fiche, available at: References for Member States’ Statistics Lithuania http://www.feantsa.org/spip.php?article853&lang=en
63 Member State Reference Ministry of the Family, Integration and the Grande Region (2015) Recensement des N.B.: In cases Luxembourg structures d’hébergement à la date du 15 mars 2015 [Enumeration of accommodation where there were Ministry of Social Affairs (2015) 2015 National Social Report Austria, available no national data for homeless people 15 March 2015] at: http://ec.europa.eu/social/keyDocuments.jsp?policyArea=750&subCatego- available, data from Austria the capital (region) ry=758&type=0&country=0&year=0&advSearchKey=SPCNationalSocialReport&mo- was transmitted de=advancedSubmit&langId=en Statistics Netherlands (CBS) (2015) Rising trend in homelessness appears to have come where possible. to an end, press release 5 March 2015, available at: http://www.cbs.nl/en-GB/menu/ The Netherlands La Strada (2014) Third census of people who are roofless,Homeless, and in inadequate themas/veiligheid-recht/publicaties/artikelen/archief/2015/stijging-aantal-daklozen- Belgium housing in the Brussels-Capital Region. 6 November 2014, available in French at: lijkt-voorbij.htm http://www.lstb.be/images/LaStrada_Denombrement_2014_rapport_FR.pdf Agency for Social Assistance (2015) quoted in Bulgaria 2015 Strategic MPiPS (2013) Sprawozdanie z realizacji działań na rzecz ludzi bezdomnych (7-8 Bulgaria Social Reporting Questionnaire, available at: http://ec.europa.eu/social/ February 2013) i Badania Socjodemograficznego. Materiał informacyjny [Report on BlobServlet?docId=13903&langId=en. the implementation of measures for the homeless (7-8 February 2013) and socio- demographic research. Information material]. (Warsaw: MPiPS). [online], available at: Poland Ministry of Social Policy and Youth (2015) National Social Report 2015, Republic http://www.mpips.gov.pl/pomoc-spoleczna/bezdomnosc/sprawozdanie-z-realizacji- of Croatia, available at: http://ec.europa.eu/social/keyDocuments.jsp?advSearch- Croatia dzialan-na-rzecz-ludzi-bezdomnych-w-wojewodztwach-w-roku-2012-oraz-wyniki- Key=SPCNationalSocialReport&mode=advancedSubmit&langId=en&policyArea=&type= ogolnopolskiego-badania-liczby-osob-bezdomnych-78-luty-2013-/ [24.11.2014] cited in 0&country=34&year=0 Busch-Geertsema, V. et al. (2014) op. cit. Hradecký, I. et al. (2012): Souhrnný materiál pro tvorbu Koncepce práce s bezdomovci v ČR naobdobí do roku 2020 [Summary Document for Drafting the Concept of Work ISS (2009) Relatório de caracterização [Characterisation report]. (Internal document), Portugal Czech Republic with the Homeless in the Czech Republic for the Period until 2020]. online, available in cited in Busch-Geertsema, V. et al. (2014) op. cit. Czech at: http://www.esfcr.cz/file/8471/ [18.06.2014] cited in Busch-Geertsema, V. et al. (2014) op. cit. FEANTSA (2014) Romania’s Country Fiche, available at: Romania Benjaminsen, L. and Lauritzen, H.H. (2013) Hjemløshed i Danmark 2013. National http://www.feantsa.org/spip.php?article853&lang=en Denmark kortlægning, Report 13: 21 [Situation of homeless people in Denmark, 2013: national mapping]. (Copenhagen: SFI), cited in Busch-Geertsema, V. et al. (2014) op. cit. De Paul International (2015) Why is homelessness such a problem in Slovakia? [online] Slovakia available at: http://www.depaulinternational.org/our-services/slovakia/causes-of-ho- Wagner, L.; Korp, E. and Walters, C. (2014) Homelessness in Estonia, Overview and melessness-in-slovakia/ [20.09.2015] Estonia Analysis European Journal of Homelessness 8(2), 231-244, available at: http://www.feantsaresearch.org/IMG/pdf/profiling-homelessness-2.pdf SORS (2011) Occupied Housing, Slovenia, 1 January 2011 – Provisional data (Ljubljana: ARA (2014) Asunnottomat 2013, Selvitys 2/2014 [Homelessness, 2013]. (Lahti: ARA), cited Slovenia Statistical Office of the Republic of Slovenia), cited in Busch-Geertsema, V. et al. (2014) Finland in Busch-Geertsema, V. et al. (2014) op. cit. op. cit. Yaouancq, F., Lebrère A., Marpsat, M., Régnier, V., Legleye, S. and Quaglia, M. (2013) Housing the homeless in 2012. Different accommodation solutions depending on INE (2012) Encuesta a las Personas sin Hogar 2012 (metodologia, diseno de registros y France micro datos) [2012 Study on homelessness (Methodology, design of records, and micro- family situation, INSEE, First N°1455, (Paris: INSEE, available in French at: Spain http://www.insee.fr/fr/ffc/ipweb/ip1455/ip1455.pdf data)]. [online], available at: http://www.ine.es/prodyser/micro_epsh.htm [24.11.2014] cited in Busch-Geertsema, V. et al. (2014) op. cit. BAG W, (2014) Schätzung der Wohnungslosigkeit in Deutschland 2003-2012 [Estimation of the homeless situation in Germany 2003-2012]. (Berlin: Bundesarbeitsgemeinschaft Germany NBHW (2012) Hemlöshet och utestängning fran bostadsmarknaden 2011– omfattning Wohnungslosenhilfe) [online] available in German at: http://www.bagw.de/de/themen/ och karaktär [The situation of homeless people and exclusion from the housing market Sweden zahl_der_wohnungslosen/ [01.09.2014], cited in Busch-Geertsema, V. et al. (2014) op. cit. 2011 - Extent and characteristics]. (Stockholm: The National Board of Health and Wel- FEANTSA (2014) Greece’s Country Fiche, available at: fare, cited in Busch-Geertsema, V. et al. (2014) op. cit. Greece http://www.feantsa.org/spip.php?article853&lang=en DCLG (2015) Statutory Homelessness: January to March Quarter 2015 England, Housing Győri, P., Gurály, Z. and Szabó, A. (2014) Gyorsjelentés a hajléktalan emberek 2014 Statistical Release, 24 June 2015, national statistics, available at: https://www.gov.uk/ február 3-I kérdőíves adatfelvételéről [Report on the third of February homeless Hungary government/uploads/system/uploads/attachment_data/file/437273/201503_Statutory_ survey – 2014].[online] available at: http://www.bmszki.hu/hu/eves-adatfelvetelek Homelessness.pdf [24.11.2014] cited in Busch-Geertsema, V. et al. (2014) op. cit. United Kingdom DCLG (2015) Rough sleeping in England: autumn 2014, Homelessness Statistical Central Statistics Office (2012) Homeless persons in Ireland: A special Census Release, 26 February 2015, available at: https://www.gov.uk/government/uploads/ Ireland report, available at: http://www.cso.ie/en/media/csoie/census/documents/ system/uploads/attachment_data/file/407030/Rough_Sleeping_Statistics_England_-_ homelesspersonsinireland/Homeless,persons,in,Ireland,A,special,Census,report.pdf Autumn_2014.pdf
78 AN OVERVIEW OF HOUSING EXCLUSION IN EUROPE 2015 | Feantsa - The Foundation Abbé Pierre The Foundation Abbé Pierre - Feantsa | AN OVERVIEW OF HOUSING EXCLUSION IN EUROPE 2015 79 in Europe: Housing exclusion the key statistics
24,177,375 %
Difficulty accessing 11.9% pourcentage 203,171,221 OF THE EUROPEAN public transport POPULATION 100% Number of households in the European Union
A household constitutes all the inhabitants of the same 6,501,479 dwelling. The population 22,348,834 of Europe is 508.1 3.2% Rent or mortgage million people Housing cost overburden 11% for 203.2 (more than 40 % of disposable income spent on housing) arrears households, so 2.5 people on average per household. but it would be rash to extrapolate housing difficulties by 35,148,621 number of people 21,942,491 on the basis Overcrowded of this average. 17.3% Difficulty maintaining The figures cannot housing 10.8% be simply added adequate household together because a single household temperature may be affected by several housing 10,564,903 difficulties. Source: Eurostat Severe housing deprivation 5.2% 11,174,417 Photo credits: Peredniankina, Javi Indy, Twin Design, Sarah Jane At risk of having to move Taylor (Shutterstock), Fatykhov (Fotolia) 5.5% house in the next six months due to housing costs ! NUMBER UNKNOWN HOMELESS Tens of millions of people in Europe are experiencing housing exclusion
Who are they? How did they end up there? What do we know about homelessness? What does European legislation and case law have to say about the right to housing?
These are the questions addressed in this Overview of Housing Exclusion in Europe, which reveals a rise in the number of homeless people in the majority of countries, the impact of the crisis on home ownership, the particular difficulties experienced by central and southern European countries, the differences in how countries manage evictions and more.
Some problems are local and so the responses should also be local. However, certain issues are emerging at a European level, some instruments exist at European level, and some solutions can only be found at European level. First and foremost, we can learn from each other: how Austria has succeeded in abolishing rental evictions, how Scotland manages to guarantee housing, how Finland has reformed its emergency accommodation services for much greater effectiveness.
From our shared problems, we can build common tools that will provide solutions: a regulatory framework, financial resources, stakeholder training, and citizen mobilisation. Greater understanding of the issues and knowledge-sharing are necessary to better adapt the future tools to needs. We hope that this document represents the first step towards future solutions: the European contribution to combating housing exclusion.